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*Ce document a été classé en diffusion restreinte le jour de la diffusion. Sauf si la Commission de Venise en décide autrement,

il sera déclassifié un an après sa publication en application des règles établies dans la Résolution CM/Res(2001)6 sur l'accès

aux documents du Conseil de l'Europe. http://www.venice.coe.int e-mail : venice@coe.int F-67075 Strasbourg Cedex Tel : + 33 388 41 30 48 Fax : + 33 388 41 37 38.

Strasbourg 3 November / novembre 2017

CDL-PL-PV(2017)003*

Bil.

EUROPEAN COMMISSION FOR DEMOCRACY THROUGH LAW

(VENICE COMMISSION) COMMISSION EUROPEENNE POUR LA DEMOCRATIE PAR LE DROIT (COMMISSION DE VENISE)

112th PLENARY SESSION

Venice, Scuola Grande di San Giovanni Evangelista

Friday, 6 October 2017 - Saturday, 7 October 2017

112e SESSION PLÉNIÈRE

Venise, Scuola Grande di San Giovanni Evangelista

Vendredi 6 octobre 2017 - Samedi 7 octobre 2017

SESSION REPORT

RAPPORT DE SESSION

CDL-PL-PV(2017)003 - 2 -

TABLE OF CONTENTS/TABLE DES MATIERES

1. .....................................................................................................................4

2. Communication du Président .................................................................................................................4

3. Communication du Bureau élargi ..........................................................................................................4

4. Election du Comité des Sages ...............................................................................................................4

5. Communication du Secrétariat ...............................................................................................................4

6. Co-operation with the Committee of Ministers / Coopération avec le Comité des Ministres ................4

7. Coopération .......................................................................................5

8. Co-operation with the Congress of Local and Regional Authorities of the Council of Europe .............6

9. Follow-up to earlier Venice Commission opinions .................................................................................7

Opinion on the proposal by the President of the Republic of Moldova to expand the President's powers

to dissolve Parliament (CDL-AD(2017)014) ..............................................................................................7

Joint opinion on the draft laws of the Republic of Moldova on amending and completing certain

legislative acts (electoral system for the election of the Parliament) (CDL-AD(2017)012) ......................7

Opinion on the draft Law on the Constitutional Court of Ukraine (CDL-AD(2016)034) ............................7

10. Georgia ...............................................................................................................................................8

11. Armenia ..............................................................................................................................................9

Opinion on the draft Judicial Code .............................................................................................................9

12. Bulgaria ........................................................................................................................................... 10

13. Hungary ........................................................................................................................................... 10

14. Venezuela ....................................................................................................................................... 11

15. Exchange of views with the Secretary General of the Organisation of American States .............. 12

16. Co-operation with the Inter-American Court of Human Rights....................................................... 12

17. Turkey.............................................................................................................................................. 13

18. Ukraine ............................................................................................................................................ 13

Opinion on the Draft Law on amendments to the Rules of Procedure and Internal Organisation of the

Verkhovna Rada of Ukraine .................................................................................................................... 13

Opinion on the draft law on anti-corruption courts and on the draft law on amendments to the law on

the judicial system and the status of judges (concerning the introduction of mandatory specialisation of

judges on the consideration of corruption and corruption-related offences) .......................................... 14

19.

20. Co-operation with International IDEA ............................................................................................. 16

21. Co-operation with the Bingham Centre for the Rule of Law ........................................................... 16

22. Information on constitutional developments in other countries ...................................................... 17

Spain ....................................................................................................................................................... 17

23. Co-operation with ............................................ 17

Maroc ...................................................................................................................................................... 17

Palestine ................................................................................................................................................. 18

24. World Conference on Constitutional Justice................................................................................... 18

25. Information on Conferences and Seminars .................................................................................... 18

26. Compilations of Venice Commission opinions and reports ............................................................ 19

27. Report of the meeting of the Sub-Commission on Latin America (5 October 2017) ..................... 20

CDL-PL-PV(2017)003 - 3 -

28. Other business ................................................................................................................................ 20

29. Dates of the next sessions .............................................................................................................. 20

CDL-PL-PV(2017)003 - 4 -

1. M. Mohammed Benabdelkader, Ministre délégué auprès du Chef du gouvernement, chargé de la réforme administrative et de la fonction publique du Royaume du Maroc, aura lieu vendredi 6 octobre à 14.30, au lieu du samedi 7 octobre.

2. Communication du Président

Le Président invite les membres à consulter la liste de ses activités récentes (voir le document

CDL(2017)028

3. Communication du Bureau élargi

Le Bureau élargi a été informé des restrictions budgétaires la Commission de Venise doivent faire face. La Fédération de Russie ayant suspendu sa Pour la Commission de Venise, ces restrictions budgétaires ont pour principale conséquence de devoir renoncer cette année

plénières et de devoir reporter certaines activités à 2018. Des mesures supplémentaires

pourraient intervenir si la situation devait perdurer en 2018.

4. Election du Comité des Sages

on a, sur

proposition du Bureau élargi, élu un " comité de sages », qui préparera les élections aux

différentes fonctions au sein de la Commission, qui se tiendront lors de la session plénière de

décembre 2017. Le Comité des Sages est composé de M. Bartole, M. Esanu, Mme Hermanns et Mme McMorrow. Chaque membre peut se porter candidat pour tous les postes à pourvoir auprès des " sages ».

5. Communication du Secrétariat

M. Markert complète les informations relatives à la situation budgétaire de la Commission, en

Commission pour les dépenses opérationnelles subira une , ce qui aura inévitablement des conséquences sur les activités.

6. Co-operation with the Committee of Ministers / Coopération avec le Comité des

Ministres

the

Council of Europe, underlined

order of his country. In particular, he stated that the several amicus curiae briefs which had been prepared by the Commission had significantly contributed to the understanding of the legal situation and of the role of the Commission. Mr Buquicchio pointed out that the Commission has assisted Bosnia and Herzegovina from the very beginning of the State, by contributing to the implementation of the Dayton Agreement so that a unified country respecting the rule of law and Council of Europe standards could emerge. M. Jean-Baptiste Mattei, Représentant permanent de la France auprès du rappelle combien les avis de la Commission ont une autorité juridique et

morale indiscutables et sont devenus des textes de référence tant pour le Comité des Ministres

CDL-PL-PV(2017)003 - 5 -

considérable des valeurs européennes au-delà du continent.

points préoccupants. A cet égard, le Comité des Ministres a pour la première fois fait recours à

Dans ce contexte,

Strasbourg.

le continent, le p Marsili félicite la Commission pour son investissement dans les régions voisines comme le

Maroc ou la Tunisie.

M. Buquicchio remercie les autorités italiennes pour leur soutien et leur hospitalité continus envers la Commission. Mr Helgesen presented the comments to be provided to the Committee of Ministers in view of its reply to Parliamentary Assembly Recommendation 2110(2017) concerning the implementation of judgments of the . As stated in the

conclusions, the Commission stands ready to play an active role in the execution of the

EC whether general measures taken by members States should be considered as sufficient or by assisting the member states in bringing their existing legislation which generated violations of the European Convention on Human Rights into conformity with the latter and in ensuring compliance of their draft legislation with the ECHR. The Commission adopted the elements for the Committee of Ministers in view of its reply to Parliamentary Assembly Resolution judgments of the European Court of CDL-AD(2017)017).

7. Coopération

de certains de ses membres. Ceci concerne certains parlementaires parce qu voyage en Syrie organisé par la Russie, bien que désormais privé du droit de représenter Madame Brasseur souligne la gravité extrême de

CDL-PL-PV(2017)003 - 6 -

A un stade ultérieur de la session Mme Brasseur informe la Commission que M. Agramunt vient de démissionner M. Philippe Mahoux, membre de la Commission des questions juridiques et des droits de M. Mahoux informe les participants en particulier que la Commission des questions juridiques approuvé le rapport sur les " Nouvelles menaces contre la primauté du droit dans les Etats basé sur les avis récents de la Commission de Venise (concernant notamment la Pologne et la Turquie). Ces deux rapports seront débattus conjointement lors de la prochaine session

à ces débats.

exprime son souhait que cette première invitation sera suivi par de futures occasions.

8. Co-operation with the Congress of Local and Regional Authorities of the

Council of Europe

Mr Anders Knape, President of the Chamber of Local Authorities of the Congress, highlighted the excellent co-operation between the Venice Commission and the Congress in the framework of the Council for Democratic Elections and referred to the decentralisation process in Ukraine as a concrete example of this co-operation. The Congress was seriously worried about the

situation of local democracy in Turkey but also in Poland. Due to the difficult budgetary

situation, scheduled visits to Turkey and Azerbaijan have had to be postponed. The next plenary of the Congress, on 18-20 October 2017, would focus on the monitoring results in Serbia, Italy and Switzerland, on electoral missions to Finland and Armenia and linguistic diversity, notably in the Flemish region around Brussels. The Congress would also deal with migration and the fight against corruption. The Congress, the Parliamentary Assembly (PACE) and the Venice Commission thus had many fields of common interest. Mr Leen Verbeek, Chair of the Congress Monitoring Committee, informed the Commission that in the framework of the monitoring of Latvia, the Congress had learnt that the Constitutional Court of Latvia had directly applied the European Charter of Local Self-Government. This should be an example for other c Checklist for compliance with international standards and best practices preventing misuse of administrative resources during electoral processes at local and regional level had been very important for London conference on the misuse of administrative resources. Future co-operation might develop on the long--going work on referendums would be particularly valuable to the Congress in its analysis of the suspension of the Vice-President of the Congress, the mayor of Chisinau, by way of a referendum, which had violated the Charter.

CDL-PL-PV(2017)003 - 7 -

9. Follow-up to earlier Venice Commission opinions

Opinion on the proposal by the President of the Republic of Moldova to expand the President's powers to dissolve Parliament (CDL-AD(2017)014) The opinion adopted by the Venice Commission in June 2017 concerned a decree of the President of the Republic of Moldova calling for a nationwide referendum, aimed primarily at the he main issue should not be discretionary. Dissolution is to be used only in certain specific situations, to overcome political deadlocks. In addition, the opinion expressed doubts as to whether the Moldovan Constitution permits the President to initiate such a referendum. The presidential decree was challenged before the Constitutional Court of Moldova, which on

27 July 2017 had declared the decree unconstitutional. Essentially, the Court decided that the

President had no power to call for a referendum aiming at constitutional amendments. In incompatible with the logic arbiter. In this judgement, extensive direct and indirect references to the opinion were made. Joint opinion on the draft laws of the Republic of Moldova on amending and completing certain legislative acts (electoral system for the election of the Parliament) (CDL-AD(2017)012) The Commission was informed that contrary to the recommendation in its previous opinion, the law replacing a purely proportional with a mixed electoral system had been adopted by the Parliament of the Republic of Moldova on 20 July 2017. The Law however implemented at least partially two recommendations concerning the way of establishing constituencies and the diminution of the thresholds for parliamentary representation in the proportional component. On 14 September 2017, the Monitoring Committee of the Parliamentary Assembly had requested the opinion on the legal framework governing the funding of political parties and campaigns, as well as the recent amendments to the electoral legislation of the Republic of Moldova. The opinion on the legislation on the funding of political parties and campaigns should be prepared for the December 2017 plenary session. The opinion on the recent amendments to the electoral legislation would be submitted to the Commission for adoption in March 2018, after the delimitation of electoral constituencies and would address the follow-up to the 2017 Opinion. Opinion on the draft Law on the Constitutional Court of Ukraine (CDL-AD(2016)034) On 13 July 2017, the President of Ukraine enacted the Law on the Constitutional Court. In its Opinion on the draft law, adopted in December 2016, the Venice Commission had made three main recommendations: that the Law should provide for a maximum number of members of the three screening committees for the judges and the law should clearly set out whether these committees are permanent or established ad hoc. However, the adopted law left the decision on the composition of the screening committees to the President and the Rada (in its Rules of Procedure). As concerns the judicial quota, the selection is to be made by the Council of Judges, followed by an open vote by the Congress of Judges. The second main recommendation concerned the procedure to follow when a senate (chamber) wishes to deviate from previous case-law. While the Commission had recommended that the senate should be obliged to relinquish jurisdiction in favour of the grand chamber, the adopted law only provided that the senate may relinquish jurisdiction. Finally, the draft law had excluded persons who had participated in any political activities during the last two years before their candidacy,

CDL-PL-PV(2017)003 - 8 -

from being candidate for the position of judge of the Constitutional Court. The Opinion had recommended removing this limitation. This recommendation was followed in the adopted law.

10. Georgia

In its Opinion on the draft revised Constitution of Georgia adopted at the June 2017 Plenary Session, the Venice Commission welcomed the move towards a proportional election system while it criticised that three features of the proposed new system, taken together, limited its positive effects: the 5% threshold rule in legislative elections, the distribution of unallocated mandates to the winning party and the prohibition of party blocs. Following the adoption of this Opinion, the Georgian parliament adopted an amended version of the draft Constitution at second reading on 23 June 2017. The present Opinion deals with this second version of the draft Constitution. Ms Kiener explained that, as the Georgian authorities had informed the Venice Commission that the Parliament would hold its third and final reading in September, the draft opinion had already been made public in order to enable the opposition parties, as well as the majority, recommendations. The Opinion reiterated the previous overall positive assessment of the constitutional reform process in that it compl system. However, the Commission regretted the postponement of the entry into force of the proportional election system to October 2024. The Commission nonetheless welcomed the commitment of the parliamentary majority (in their letter of 20 September to the Venice Commission) to reduce the election threshold to 3% and to allow party blocks in the 2020 elections in order to alleviate the negative effects caused by the postponement. The second draft maintained the 5% threshold and disallowed party blocks as from 2024. It also replaced the bonus system in the distribution of unallocated mandates by a very complex system which still favoured the strongest party. Therefore, the Commission welcomed the commitment by the parliamentary majority to abandon this complex system of distribution and to introduce the system of proportional distribution of unallocated mandates as from 2024. While recognising that a number of amendments made to the previous draft Constitution followed its previous recommendations, the Venice Commission also made a number of additional recommendations pertaining to the fundamental rights catalogue and the judiciary. The Commission also reiterated that any major constitutional reform must reach the widest possible consensus. Mr Kobakhidze, Speaker of Parliament, underlined the importance of the co-operation with the Venice Commission during this constitutional reform and reiterated their initial commitment that no amendment negatively assessed by the Venice Commission would be adopted by Parliament. He presented the main differences between the first version of the draft amendments and the current version and stressed that the system of checks and balances and the rule of law in the amended Constitution would prevent the establishment of any autocratic government in Georgia. Ms Anna Dolidze, chief legal adviser to the President of Georgia, criticised the failure to forge a dialogue between the ruling party and the opposition parties and the lack of consensus during the whole constitutional process. She informed the Commission about the list of suggestions to the ruling party agreed by the President and the opposition parties, including the postponement of the introduction of an indirect election system for the President and the establishment of a two chamber parliament.

CDL-PL-PV(2017)003 - 9 -

The Commission adopted the draft opinion on the draft revised Constitution of Georgia as adopted in the second reading on 23 June 2017 (CDL-AD(2017)023).

11. Armenia

Ms Arpine Hovhannisyan, Vice-President of the National Assembly of Armenia, presented the progress in the implementation of the 2016 constitutional amendments. Twelve laws had been

listed as a priority; some of these (the electoral code, the law on political parties, the law on the

human rights defender) had been successfully prepared with the assistance. The others were in the pipeline, notably the Judicial Code. They would be submitted to parliament before the end of the year. Seventeen further laws were to be prepared by April 2018. Ms Hovhannisyan was confident that, also thanks to the close and fruitful co-operation with the Venice Commission, the implementation of the Constitution would be of high quality and meet international standards and best practice.

Opinion on the draft Judicial Code

Mr Neppi Modona introduced the draft opinion, requested by the then Minister of Justice of Armenia, and approved by the Sub-Commission on the Judiciary on 5 October 2017. The Draft Judicial Code was prepared following the constitutional reform of 2015; the reform had received a generally positive assessment by the Venice Commission. In particular, the draft opinion found that the composition of the Supreme Judicial Council (SJC) Also, the Judicial Department might remain an autonomous body with administrative functions vis-à-vis the courts, but should function under the SJC control. Some provisions of the Draft Code would benefit from clarification, especially as regards the criteria and method of performance evaluation and the appointments procedures, the rules of conduct of judges etc. Nevertheless, the Draft Code was excessively detailed and lacked flexibility; furthermore, no right of appeal to a court of law was provided for judges against SJC decisions in disciplinary matters. Mr Arthur Hovhannisyan, First Deputy Minister of Justice of Armenia, informed the Commission that the Ministry was in the process of revising the Draft Code. The revision would take into account most of the key recommendations of the Venice Commission: a common sitting of the chambers of the Court of Cassation would be introduced, in order to avoid jurisdictional disputes; the wording of the provision enabling lower courts to derogate from the case-law would be changed; the Draft Code would explain better the place of the qualification exams in the appointment procedure; the rules of conduct would be formulated with more precision; the Judicial Department would continue to perform administrative functions. On the question of appeal in disciplinary matters, the Armenian authorities were of the view that the possibility to lodge a complaint before the Constitutional Court should suffice for this purpose. The Commission adopted the Opinion on the Draft Judicial Code of Armenia (CDL-AD(2017)019).

CDL-PL-PV(2017)003 - 10 -

12. Bulgaria

Mr Kuijer introduced the draft opinion, requested by the PACE Monitoring Committee, and approved by the Sub-Commission on the Judiciary on 5 October 2017. The 2015 constitutional reform of the Bulgarian judiciary had brought many positive changes (such, as, for example, the separation of the Supreme Judicial Council (SJC) into two chambers, one for judges and one for prosecutors). However, not all previous Venice Commission recommendations had been fully implemented, and further changes were needed. The draft opinion focused on three core issues. The first was the powerful position of the Prosecutor General (PG) within the system of judicial governance. Prosecutors are subordinate to the PG; they participate in the plenary sitting of the SJC together with the PG and may even be represented in the Judicial Chamber. There are weak mechanisms of accountability of the PG: it is virtually impossible to remove him/her for a criminal offence, and it is very difficult to itution and the Act. The draft opinion suggested some possible solutions to remedy this situation. The composition of the Judicial Chamber was another point of concern, since the SJC Plenary (where judges represent a net

minority) had retained some important functions vis-à-vis judges; furthermore, within the

Judicial Chamber itself, judges elected by their peers were in a slight minority. The third key issue was the question of inspections and appraisals of judges. The Inspectorate was now endowed with vast powers, overlapping with the powers of the SJC. This needed to be revised, and the Inspectorate needed to have institutional links to the SJC. Mr Evgeni Stoyanov, Deputy Minister of Justice of Bulgaria, thanked the Venice Commission for the good co-operation but noted that it would not be wise to initiate new constitutional amendments, less than two years after the 2015 constitutional reform which had started to bear fruit in June 2017 new judicial members of the Judicial Chamber had been elected. As regards the accountability of the PG, a special working group had been set up in order to develop appropriate procedures. The powers of the Inspectorate and of the SJC were not overlapping; checks conducted by the Inspectorate were an important factor to be taken into account in the appraisal process. In the ensuing discussion it was stressed that many of the recommendations contained in the opinion may be implemented at the legislative level, without further constitutional amendments. The Commission adopted the Opinion on the Judicial System Act of Bulgaria (CDL-AD(2017)018).

13. Hungary

Mr Vermeulen explained that, in accordance with the decision taken by the Bureau on account of domestic implementation deadlines, the preliminary opinion, prepared at the request of the Parliamentary Assembly, had already been sent to the Hungarian authorities and published on

11 August 2017. The Law of April 2017 amending the 2011 Law on National Higher Education

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